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COM (2013) 500 (12367/13)
SWD (2013) 251 (ADD1)
SWD (2013) 252 (ADD2)
EXPLANATORY MEMORANDUM ON EUROPEAN UNION LEGISLATION
Proposal for a DECISION OF THE EUROPEAN PARLIAMENT AND OF THE
COUNCIL on the participation of the Union in the Active and Assisted Living
Research and Development Programme jointly undertaken by several Member
States
Submitted by the Department for Business, Innovation and Skills on
July 2013
SUBJECT MATTER
1.
This proposal seeks to allow the European Union to financially contribute to a
programme undertaken by several Member States on the development of ICT-based
solutions for active and assisted living, the Active and Assistive Living Research and
Development Programme (AAL2). The programme builds on the work of the Ambient
Assisted Living (AAL) programme part-funded under the 7th Research Framework
Programme, the predecessor of Horizon 2020. The proposal is underpinned by two
Staff Working Documents that provide background information and justification for the
approach taken.
2.
The treaty-base for EU participation is provided by Article 185 on the Treaty on
the Functioning of the European Union, which invites the Union to ‘make provision, in
agreement with the Member States concerned, for participation in research and
development programmes undertaken by several Member States, including
participation in the structures created for the execution of those programmes’.
3.
The Staff Working Document (SWD) lays out the rationale for action in Europe
in the domain of assisted living technologies, noting that the Europe 2020 flagship
initiatives “A Digital Agenda for Europe” and “Innovation Union” identified the ageing
population as a challenge for innovation. The SWD also highlights the shortage of
innovative ICT-based solutions that could be used to address the issue. It then
makes the general case for EU-level action and identifies general (GO), specific (SO)
and operational objectives (OO) viz.
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GO1: To improve conditions for EU competitiveness in the field of ICT based
products and services for active and healthy ageing by better exploiting the
industrial potential of policies of innovation, research and technological
development;
GO2: To contribute to sound public finances and smart, sustainable and
inclusive growth;
GO3: To contribute to increasing R&D spending to 3% of GDP by 2020
(Europe 2020 / Horizon 2020 objective), as well as strengthening the
European Research Area and scientific and technological bases in Europe;
GO4: To focus future Union funding programmes more on Europe 2020
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SO1: Improve the quality of life for the elderly and their carers (and by doing
so also benefit other people, in particular those with disabilities) and help
increase the sustainability of care systems, by enhancing the availability of
ICT based products and services for active and healthy ageing;
SO2: Create a critical mass of trans-European research and innovation for ICT
based products and services addressing active and healthy ageing, in
particular involving SMEs and users;
SO3: Leverage private investments and improve industrial growth potential by
providing a framework for developing European approaches and solutions that
meets varying national and regional social preferences and regulatory
aspects.
OO1: Further improve operational excellence and accountability for the
programme;
OO2: Reduce time to market, by facilitating user and industry-driven research
OO3: Facilitate participation for all actors in the innovation chain, in particular
SMEs, end-users and service providers, from the start and in all stages of the
projects (e.g. through iterative and design and development approaches);
OO4: To increase the number of participating Member States and to leverage
private and national co-financing;
OO5: To ensure complementarity with national programmes and EU level
initiatives such as Horizon 2020, and align with the Strategic Implementation
Plan of the European Innovation Partnership on Active and Healthy Ageing
(EIP AHA).
4.
The SWD then identifies seven options. Four (no further financial commitment;
light co-ordination; combining AAL2 with the Joint Programming Initiative “More years,
better lives”; and combining AAL2 with the successor to Eurostars) are discarded on
various grounds and three (an AAL2 identical to AAL; no AAL2; or a reinforced and
improved AAL2) are considered against the economic, social, environmental and other
impacts. The SWD concludes that the option of a reinforced and improved AAL2 is the
best option.
5.
The proposal lists the foreseen initial Participating States, including the UK. Of
the Participating States for AAL, Germany, Finland, Greece, Israel, Italy and Norway
are not listed. The proposal recommends the maximum Union financial contribution,
drawn form the budget from the Horizon 2020 Programme, should be 175M€
(£150M)and that it should not be more than 50% of the total public-sector contribution
(ie the Participating States must match the Union contribution). The proposal foresees
this public-funding being at least matched by project-participants for a total envelope of
around 700M€ (£600M).
6.
The proposal describes the governance model, project-selection procedures and
other operational aspects of AAL2.
SCRUTINY HISTORY
7.
COM (2007) 329 A proposed Decision of the European Parliament and of the
Council on the participation by the Community in a research and development
programme aimed at enhancing the quality of life of older people through the use of
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new Information and Communication Technologies (ICT), undertaken by several
Member States. 10957/07. Cleared at Lords EUC sift on 11 July 2007. Commons
ESC cleared as not raising issues of importance in report 30, 06-07
8.
COM(2010) 763 Report from the Commission to the European Parliament and
the Council First Interim Evaluation of the Ambient Assisted Living Joint Programme
(AAL JP). 5047/11. Cleared at Lords EUC sift on 25 January 2011. Commons ESC
cleared as not raising issues of importance in report 17, 10-11.
MINISTERIAL RESPONSIBILITY
9.
The Secretary of State for Business, Innovation and Skills has the principal
Ministerial responsibility for research and innovation matters, including the United
Kingdom’s policy on EU research and development. The Secretary of State for
Health has responsibility for improving the health and well-being of people in
England, the Devolved Administrations have corresponding responsibility in
Scotland, Wales and Northern Ireland. The Devolved Administrations have been
consulted during the drafting of this EM.
LEGAL AND PROCEDURAL ISSUES
Legal Basis
10.
The Legal basis is provided by Article 185 on the Treaty on the Functioning of
the European Union (TFEU).
European Parliament Procedure
11.
In accordance with Article 188 of the TFEU the European Parliament will adopt
the Ordinary Legislative Procedure.
Voting Procedure
12.
In accordance with Article 294 of the TFEU the Council agree by QMV.
Impact on UK Law
13.
None.
Application to Gibraltar
14.
The proposal applies to Gibraltar by virtue of Article 355 of the TFEU. The
practical effect is that the proposal will only apply to organisations based in Gibraltar
which choose to participate in projects.
Fundamental Rights Analysis
15.
There are no implications for fundamental rights.
APPLICATION TO THE EUROPEAN ECONOMIC AREA
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16.
A country that has an Association Agreement with Horizon 2020 can apply to
become a Participating Country of the AAL2 Programme provided it meets the
requirement of Article 3.1(c) of the proposal.
SUBSIDIARITY
17.
The Government endorses the assessment of subsidiarity in the proposal and
SWD. As this is a programme carried out by Member states in collaboration, they will
have responsibility for the work programme and operational aspects. The AAL2
programme does not prevent the UK supporting national programmes in areas covered
by AAL2.
POLICY IMPLICATIONS
18.
The Government welcomes the AAL2 programme, which will provide a valuable
element in the EU-level R&D&I support provided through the R&D aspects of “Health
and Demographic Wellbeing” and “ICT” elements of Horizon 2020 and through the PreCommercial Public Procurement and Public Procurement of Innovations actions that
can be part-supported through Horizon 2020.
19.
The Government’s view on the importance of R&D&I into assistive technologies
is summarised in the Department of Health’s “Research and development work relating
to assistive technology” that was laid before Parliament on July 10th. The report draws
attention to recent UK studies on the size and scale of the problem and opportunity and
states that the 2013 Queen’s Speech included a Care Bill that, subject to Parliamentary
approval, will place a duty on local authorities to promote well-being, prevent needs for
care and support, promote integration of health and social services and provide
information and advice. It notes that in December 2012 the Department of Health
published an update on the implementation of the report “Innovation health and
wealth”, accelerating adoption and diffusion in the NHS'. Six ‘high impact innovations’
included Digital First, the 3 million lives telehealth and telecare programme and the
Child in a Chair in a Day programme, to improve wheelchair services.
20.
The Technology Strategy Board’s Assisted Living Innovation Platform (ALIP)
was set up five years ago to provide a focus for business-led innovation in response to
the phenomenon of population ageing. The aims of the ALIP are to foster technological,
business and social innovation; ensuring people continue to live independent lives the
way they choose in the future. The ALIP addresses issues such as quality of life, and
health and wellbeing.
21.
The ALIP has been co-ordinating activity with partners such as the Department
of Health, UK research councils, the Design Council, local authorities and others in the
UK nationally and with the Ambient Assisted Living Association (the implementing body
of AAL2) at the EU-level. It has launched ten competitions since 2007, which have
involved more than 200 organisations in 60 projects worth £89m.
CONSULTATION
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22.
BIS ran a "call-for-evidence" between 13 Oct 2010 and 4 Jan 2011 to gather
views of stakeholders on our priorities for the successor to FP7. Around half the
respondents commented on JTIs. Industrial respondents, the primary beneficiaries of
JTIs, expressed strong support in principle for the JTI model but called for
simplification of the mechanism and increased accessibility for SMEs.
IMPACT ASSESSMENT
23.
The Commission produced an impact assessment report that was reviewed by
the Impact Assessment Board. The impacts of the various options considered are
summarised in the SWD. Although this is a proposal for a Council Decision,
participation by countries in AAL2 and by stakeholders in proposals is voluntary.
FINANCIAL IMPLICATIONS
24.
The proposal lays out the foreseen commitments and payments schedules from
the Horizon 2020 budget and the administrative costs. For the period 2014 to 2020 the
proposal predicts an overall envelope of 650M€ (£557M) based on the EU matching
Participating Country contributions up to a limit of 175M€ (£150M) and organisations
participating in projects contributing resources to the value of approximately 300M€
(£257M). The EU funding contribution will come from the relevant activity line(s)
within Horizon 2020, the Framework Programme for Research and Innovation (20142020).
TIMETABLE
25.
Negotiations on the Proposal are likely to begin in September with final
approval expected by the summer of 2014.
David Willetts
Minister of State for Universities and Science
Department for Business Innovation and Skills
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